HOUSING IMPACT FEE NEXUS STUDY

Transcription

1 HOUSING IMPACT FEE NEXUS STUDY SUBMITTED TO City of Salinas January 2016 Prepared by VERNAZZA WOLFE ASSOCIATES, INC Shasta Road Tel: (510) Berkeley, California 94708

2 HOUSING IMPACT FEE NEXUS STUDY CITY OF SALINAS TABLE OF CONTENTS EXECUTIVE SUMMARY... I INTRODUCTION... 1 HOUSING PROTOTYPES USED IN STUDY... 4 HOUSEHOLD INCOMES... 8 IMPLAN3 ANALYSIS RESULTS POLICY CONSIDERATIONS ANNUAL ADJUSTMENT MECHANISM POLICY CHOICES APPENDIX A: IMPLAN METHODOLOGY AND CALCULATED NEXUS RESULTS A-1 APPENDIX B: HOUSING AFFORDABILITY GAP... B-1 APPENDIX C: FINANCIAL FEASIBILITY ANALYSIS... C-1 Housing Impact Fee Nexus Study City of Salinas

3 EXECUTIVE SUMMARY HOUSING IMPACT FEE NEXUS STUDY CITY OF SALINAS As part of the review and update of the City s Inclusionary Ordinance, the City is looking at the possibilities of enacting a housing impact fee (discussed in this report) and a Commercial Linkage Fee (discussed in another nexus study report). The City of Salinas does not currently have a Housing Impact Fee. A Housing Impact Fee would be charged on new residential developments in order to help pay for an increase in affordable housing demand associated with the hiring of new workers who are employed to provide the goods and services needed by renters and buyers living in newly built residential developments. (In comparison, a Commercial Linkage Fee is charged on new commercial developments to offset affordable housing impacts from new employees working in these new commercial spaces.) In order to demonstrate an essential nexus (connection) between new housing development and the impact to affordable housing to justify a new fee on residential development, it is necessary to undertake a Housing Impact Fee Nexus Study. This Nexus Study provides this analysis and is a companion study to the Commercial Linkage Fee Nexus Study also prepared as part of the update to the Inclusionary Housing Program. The purpose of this nexus analysis is to quantify the increase in demand for affordable housing that accompanies new residential development. It is assumed that there will be a net gain in employment when new residential units are built. (For example, child care, food service jobs and landscaping work will all be needed because of the new residential units.) Unlike other types of impact fee studies, the affordable housing impacts are not direct. Instead, they are derived from the expenditures of residents moving into newly constructed residential units. The ability of new employees generated by the net gain in employment when new residential units are built to pay for housing costs is linked to their occupations (and hence salaries). Additional housing units will be needed for those employees who will work in Salinas and who want to live in Salinas as well. Housing units at all price levels are needed. Given anticipated incomes, there is an affordability gap between what some households can afford to pay (to rent or to buy) and the actual costs of new residential development. This gap provides the basis for a fee calculation. Based on current and potential residential developments in the future growth areas, this Nexus Study examines three residential prototypes. These include (1) Single Family Low Density Units, (2) Single Family/Townhome Units on Small Lots, and (3) Apartment Units. Housing Impact Fee Nexus Study City of Salinas i

4 The per unit fee amounts calculated for this study are directly related to potential sales prices and potential market rents. However, the square foot fee amounts are related not only to these potential prices and rents, but also to the average sizes of units in each of the prototypes. Consequently, although the per unit fee calculated for the single family low density prototype is the highest of the three prototypes, the square foot fee calculated for the apartment units (that are less than half the size of the single family low density units) are the highest of the three prototypes. Table ES-1 below presents the maximum fee amounts for each residential prototype, as well as three reduced fee scenarios, assuming the same fee per square foot for all residential prototypes. While a Nexus Study establishes a maximum fee level for the City s consideration, the City can select a lower fee amount. Table ES-1: City of Salinas Potential Housing Impact Fees per Unit and Square Foot (Rounded Values) Low Density Single Family Homes Small Lot Single Family/Townhomes Apartments Average Unit Size (Square Feet) 2,600 1,750 1,060 Maximum Fee Amount Per Unit (1) $34,000 $22,000 $21,000 Maximum Fee per Square Foot $13 $13 $20 Fee Scenarios (2) Scenario #1: Fee/Unit $26, 000 $17,500 $10,600 Scenario #1: Fee per Square Foot $10 $10 $10 Scenario #2: Fee Per Unit $13,000 $8,750 $5,300 Scenario #2: Fee per Square Foot $5 $5 $5 Scenario #3: Fee Per Unit $5,200 $3,500 $2,120 Scenario #3: Fee per Square Foot $2 $2 $2 (1) The full fee represents a fee if all affordable housing impacts are considered within Monterey County. (2) The fee scenarios are fixed dollar amounts below the maximum fee level. Sources: Tables 3 and 8. The study process was guided by a seven member Technical Advisory Committee (TAC), with additional input from a Resource Group. The TAC was made up of a broad set of stakeholders including developers, affordable housing advocates, land use law experts and others. The TAC, which met throughout the process, helped finalize key decisions, such as which prototypes to study. The Resource Group was made up mostly of developers with technical expertise. The next step in the study process is for public officials in the City to consider whether to adopt a Housing Impact Fee, and if so, at what level. In making this decision, the City will take into consideration many factors that could affect the proposed fee's impact on residential development feasibility, such as whether it will also be adopting a Commercial Linkage Fee on new commercial Housing Impact Fee Nexus Study City of Salinas ii

5 developments, housing impact fees in neighboring jurisdictions, financial feasibility, as well as the overall existing City fees already charged on residential developments, as well as other affordable housing requirements. Housing Impact Fee Nexus Study City of Salinas iii

6 INTRODUCTION The City of Salinas is potentially interested in adopting a housing impact fee on new housing developments. The purpose of this fee would be to mitigate the impact of an increase in demand for affordable housing due to employment growth associated with potential new housing development. The City has also commissioned a Commercial Linkage Fee Study which calculated the demand for affordable housing due to direct employment growth associated with new commercial developments. In this way, the City could distribute the responsibility for affordable housing associated with real estate development across both commercial and residential developments. The City authorized a Housing Impact Fee Study as part of an evaluation of its inclusionary program. While it is possible for the City to continue to operate an inclusionary program for ownership units, it cannot include rental units in its Inclusionary Program. Due to a state court decision (referred to as the Palmer Decision), it is no longer possible to apply inclusionary zoning requirements on new rental developments, unless the developer receives assistance from the City and the developer agrees by contract to limit rents. The assistance can take many forms including increased density. However, a rental housing impact fee established through a nexus study will allow the City to collect housing impact fees from the developers of new rental housing. This Nexus Study also undertakes the calculations for an ownership housing impact fee. Finally, information provided by this Study (housing affordability gap) can also be used to update the City s in-lieu fee for the City s Inclusionary Housing Program. In order to establish these fees, nexus studies are required under California law. In the case of residential development, a nexus study establishes and quantifies a link or nexus between new residential development and the need for additional housing affordable to new workers. Nexus studies for school impact fees, traffic mitigation fees, and park fees are common. Although nexus studies for housing impact fees are less common, a peer-validated methodology exists that establishes a connection between the development of market rate housing and the need to expand the supply of affordable housing. This study is based on this methodology. The approach for this Nexus Study is to quantify the number of new employees that need to be accommodated in the City of Salinas in order to provide goods and services to the market rate households that are moving into Salinas and renting or purchasing new housing. Although growth in employment will provide jobs at various wage rates, many of the new jobs will be at low-wage rates in retail trade and services. Since low-wage households cannot reasonably afford to pay for market rate rental and for-sale housing in Salinas, a housing impact fee can be justified Housing Impact Fee Nexus Study City of Salinas 1

7 to bridge the difference between what these new households can afford to pay and the costs of developing new, modest housing units for them. This approach assumes that the development of new market rate housing units creates a situation in which low-wage households need to move to the City of Salinas in order to provide goods and services to the residents of new market rate housing. In the absence of market rate residential growth, new employees would not be needed to fill the employment demand created by new residents, and hence there would not be a need for a housing impact fee. Figure 1 presents a diagram of this approach. Housing Impact Fee Nexus Study City of Salinas 2

8 Housing Impact Fee Nexus Study City of Salinas 3

9 HOUSING PROTOTYPES USED IN STUDY The first step in a nexus analysis is to model residential housing prototypes to use in the study. The prototypes establish the types of market rate housing development that are occurring or are expected to occur in the City that could potentially be subject to the affordable housing impact fee. The fees calculated in this nexus study are only applicable to the housing prototypes defined in this analysis. Based on historical development trends, market data, developer interviews, and input from city staff, the Consultant Team constructed three housing prototypes that represent the type of development that is likely to occur in Salinas: for-sale single-family, low-density homes, for-sale small lot single family or townhomes, and rental apartments. While these prototypes are based on actual developments, they are not intended to represent specific development projects. Instead, they are designed to illustrate the types of projects that are likely to be built in Salinas in the near future. Tables 1 and 2 provide the background market information that was consulted in the development of the prototypes used in this Study. It should be noted that the slowdown in new residential development that characterized both the state and the nation also impacted the City of Salinas. There was very little new residential construction during the period , and the housing market is only now recovering. Because the model looks at impacts from new development, the prototypes are based on recent trends in new construction. Patterns in the resale market are summarized in the housing element. Housing Impact Fee Nexus Study City of Salinas 4

10 Table 1: Planned and Newly Constructed, For-Sale Developments (City of Salinas and Selected Locations in Monterey County ( ) Prototype Location Number of Units Unit Size Sales Price Price per SF # of Bedrooms No. of Bathrooms Parking Density/Lot Sizes Single Family Homes-Low Density Monte Bella, Tesori (under construction) Monte Bella Phase 4: 2011 East Garrison: Some units completed, and others are under construction. Salinas Salinas Unincorporated Monterey County 77 (About 27 are complete and 50 are under construction) 125 Lots 200 2,260 SF Average 2,872 SF Average 1,575-2,877 SF $415,000 to $510,000 $184 to $226/SF 3 3 $364,643 $128/SF 4 3 $452,000 - $655,000 $228/SF to $287/SF SF Garages 450 Sf Garages (Median) 500 SF Garages (average) 5 du/acre 5,500-6,827 SF Lot sizes - average 3,840 SF Single Family Small Lot/Townhomes The Commons at Rogge Road (2008) Sea Houses (Duets), part of The Dunes, opening in 2015 Surf House, part of The Dunes, opening in 2015 Unincorporated Monterey County 123 Marina 92 Marina 105 Average size of 1,567 SF 1,523-1,896 SF 1,928-2,158 SF $254,267 (average) $495,000 - $544,000 $599,000 - $634,000 Sources: Interviews with local developers, and review of information on developers websites (2015). $123/SF average $287/SF to $325/SF $294/SF to $311/SF SF Garages (averages) 400 SF Garages 400 SF Garages High Density (15 du/acre) 2,500-3,500 SF 2,500-3,500 SF Housing Impact Fee Nexus Study City of Salinas 5

11 Table 2: Planned and Newly Constructed, Rental Developments (City of Salinas, ) Prototype Apartments Creekbridge Apartments (2015) Location Number of Units Unit Size Monthly Rent Price per SF Average # Bedrooms Average # Bathrooms Parking Salinas - Located in Creekbridge Retail Center. 36 One covered One-Bedroom Units SF $1,265 - $1,290 NA 1 1 Model #1 (twobedroom units) SF $1,465 NA 2 2 Model #2 (twobedroom units) 6 1,026 SF $1,515 NA 2 2 Three-Bedroom Units 12 1,192 SF $1,765 NA 3 2 Four-Bedroom Units 6 1,407 SF $1,890 NA 4 2 parking space assigned to each unit and 44 open spaces. Sources: Interviews with local developers, and review of information on developers websites (2015). Housing Impact Fee Nexus Study City of Salinas 6

12 Based on the information presented in Tables 1 and 2, new and proposed residential developments used in this Study are described as follows: Single Family Homes-Low Density Density: 6 DU/Acre (average) Lot Size: 5,000 SF Average House Size: 2,600 SF Sizes: Three to four bedrooms, three bathrooms Parking: 450 SF garages Average Prices: $415,000 to $520,000 Single Family/Townhome Small Lot Density: 9-15 DU/Acre Lot Sizes: 3,000 SF Average House Size: 1,500 SF Sizes: Three to four bedrooms, three bathrooms Parking: 400 SF garages Average Price: $275,000 to $310,000 Apartments No change (based on Creekbridge Apartments) Density: DU/Acre Sizes: One to four bedroom units, 1 to 2 bathrooms Parking: One covered space Rents: $1,265 - $1,890 per month These unit descriptions are also consistent with requirements of the new residential balance proposed for the Future Growth Areas, and were approved by the Technical Advisory Committee. Finally, Table 3 presents three prototypes. The prototype information includes residential unit descriptions, including rents and sales prices, as well as the number of units in each prototype. These unit counts do not conform to a specific project in Salinas or Monterey County, but are expressed in rounded numbers to simplify reporting. Housing Impact Fee Nexus Study City of Salinas 7

13 Table 3: City of Salinas, Residential Prototypes Used in Nexus Study Monthly Rents No. of Units in Prototype 1 Sales Prices (Weighted Average) Low Density Single Family 40 Three-Bedrooms, Three Baths 20 $415,000 Four-Bedrooms, Three Baths 20 $520,000 Small Lot Single Family/Townhomes 60 Three-Bedrooms, Three Baths 30 $255,000 Four-Bedrooms, Three Baths 30 $310,000 Apartments 40 One Bedroom, One Bath 7 $1,300 Two Bedrooms, Two Baths 13 $1,500 Three Bedrooms. Two Baths 13 $1,750 Four Bedrooms, Two Baths 7 $1,900 Sources: Tables 1 and 2. HOUSEHOLD INCOMES A Housing Impact Fee Nexus Study requires that household incomes of new buyers and renters be calculated in order to provide the input into the IMPLAN3 model described in a subsequent section of this report. These incomes are not the same as the affordable incomes presented in Appendix B of this study, which are the affordable incomes provided by the State of California Department of Housing and Community Development (HCD). In other words, the market rate buyer and renter incomes are specifically estimated for this study only and are modeled on potential incomes of buyers and renters who would move into the units in these three project prototypes. These incomes are based on the sales prices and rents presented above. Threshold incomes needed to purchase or rent units are detailed below, and are based on standards used in the housing industry for example, standards used by lenders. Tables 4 and 5 show the estimated household incomes of buyers of single family detached units, buyers of small lot single-family and townhome units, and renters of apartment units, respectively. Household incomes are then incorporated into a model of household expenditures which are a key input to the IMPLAN3 economic impact analysis described in the next section of this report. The first step for both renters and buyers it to estimate the annual costs of owning and renting. For buyers, a downpayment of 20% is assumed, and the mortgage is a fixed rate 30 year loan. Additional costs covering maintenance and repair, hazard insurance, and property taxes need to be considered. It is also assumed that housing costs should not exceed 30% of income. 1 The project size used in a nexus study is not critical, since the housing impact fee is expressed on a unit (and per square foot basis). Furthermore, the project sizes are not meant to describe any particular development, Housing Impact Fee Nexus Study City of Salinas 8

14 In calculating incomes, the following assumptions were made for the ownership prototypes: Assumptions Values Downpayment 20% Loan Term (years) 30 Interest Rate (annual) 4.125% 2 Property tax rate (annual) % of sales price 3 Maintenance and Repair 1% of sales price Fire and Hazard Insurance (annual) 0.35% of sales price Housing Costs as % of HH Income 30% The only assumption for the rental prototype was that 30% of gross income is spent on rent. Unlike affordable rental calculations, deductions for utilities are not necessary. Table 4: Income Calculations for Ownership Prototypes Small Lot Single Low Density Single Family Family/Townhomes Sales Prices $415,000 $520,000 $255,000 $310,000 Number of Units Downpayment $83,000 $104,000 $51,000 $62,000 Loan Amount $332,000 $416,000 $204,000 $248,000 Monthly Debt Service $1,609 $2,016 $989 $1,202 Annual Debt Service $19,308 $24,194 $11,864 $14,423 Annual Property Taxes $4,906 $6,147 $3,014 $3,665 Annual Maintenance Costs $4,150 $5,200 $2,550 $3,100 Fire and Hazard Insurance $1,453 $1,820 $893 $1,085 Annual Costs $29,817 $37,361 $18,321 $22,273 Household Income $99,389 $124,535 $61,070 $74,242 Sources: Table 3, City of Salinas (tax rates), industry standards for insurance and maintenance costs, Wells Fargo Website for interest rate, and additional calculations undertaken by Vernazza Wolfe Associates Inc. Table 5: Income Calculations for Apartment Prototype Average Monthly Rent Annual Housing Cost Estimated Average Annual Household Income Number of Rental Unit Type Units One Bedroom, One Bath 7 $1,300 $15,600 $52,000 Two Bedrooms, Two Baths 13 $1,500 $18,000 $60,000 Three Bedrooms. Two Baths 13 $1,750 $21,000 $70,000 Four Bedrooms, Two Baths 7 $1,900 $22,800 $76,000 Source: Table 3 and calculations undertaken by Vernazza Wolfe Associates Inc. 2 Source: July 31, 2015 Wells Fargo Website - FNMA Loan 3 Average of Salinas tax rates, provided by the City of Salinas. Housing Impact Fee Nexus Study City of Salinas 9

15 These incomes are then defined in terms of income categories for use in the expenditure calculations included in the IMPLAN3 Model. Table 6 shows the number of households for each prototype by income categories. Table 6: Incomes of Buyers and Renters of Residential Prototype Units Household Income Level Households Low Density Single Family Household Incomes Less than $10,000 0 $10,000-$15,000 0 $15,000-$25,000 0 $25,000-$35,000 0 $35,000-$50,000 0 $50,000-$75,000 0 $75,000-$100, $100,000-$150, Over $150,000 0 Total 40 Small Lot Single Family/Townhome Incomes Less than $10,000 0 $10,000-$15,000 0 $15,000-$25,000 0 $25,000-$35,000 0 $35,000-$50,000 0 $50,000-$75, $75,000-$100,000 0 $100,000-$150,000 0 Over $150,000 0 Total 60 Apartment Household Incomes Less than $10,000 0 $10,000-$15,000 0 $15,000-$25,000 0 $25,000-$35,000 0 $35,000-$50, $50,000-$75,000 7 $75,000-$100,000 0 $100,000-$150,000 0 Over $150,000 0 Total 40 Sources: Tables 4 and 5. IMPLAN3 ANALYSIS The growth in sales and services transactions (predicated upon buyers and renters incomes) can be translated into employment growth via an input-output model for Monterey County. This model simultaneously accounts for all purchases and expenditures throughout the entire local Housing Impact Fee Nexus Study City of Salinas 10

16 economy and is useful in defining economic impacts from exogenous changes, such as a growth in expenditures. In turn, growth in employment can be used to estimate employee household growth. Some of these new households will require affordable housing, particularly since the growth in employment is generally in lower wage paying sectors, such as retail sales and services. Once the number of households that require affordable housing is estimated, it is possible to calculate the total funds needed to bridge the gap between the costs of developing new affordable housing and what new low- and moderate-income households can afford to pay. This total gap figure is then divided by the number of new housing units in the hypothetical development to estimate the maximum fee amount per unit that can be justified on the basis of a nexus calculation. RESULTS Table 7 presents the step-by-step findings of this Nexus Study. Based on the three prototypes defined for this study, the City of Salinas can expect the following: The increase in expenditures associated with new residential development generates direct and induced growth in Monterey County employment of 30 jobs for the 40 low density single family homes, 31 jobs for the 60 single family small lot/townhome units, and 19 jobs for the apartment units. Because the focus of this nexus study is on growth in households that require affordable housing, the total employment figure is adjusted by dividing total employment by the average number of workers per households with workers. According to the American Community Survey 3-Year Estimates, the average number of wage-earners per household is 1.72 in Salinas. Therefore, the total number of new jobs calculated by the IMPLAN3 Model is reduced for each prototype. (See Table 7 for the exact number of households carried forward in the analysis.) It is assumed that the income of the second wage-earner in a household is the same as the first wage-earner s income. Hence, incomes of the new employee-households are calculated by multiplying the new worker s income (calculated by the IMPLAN3 Model) by 1.72 (the number of wage-earners in a household with a wage-earner). Since some new employees earn incomes over 120% area median income (or above the income cut-off of $78,325 for a moderate-income, 3.5-person household in Salinas), the Housing Impact Fee Nexus Study City of Salinas 11

17 number of new employee-households is further reduced for each prototype. (The income cut-off of $78,325 is based on HCD FY 2015 Income Limits for Monterey County.) The aggregate affordability gap for each prototype is calculated by multiplying the number of new worker households by the average gap that applies to each major income group (moderate-income level and below). 4 It is estimated that the total affordability gap associated with new employment related to the prototypes for low density single family homes is approximately $1.345 million; for single family small lot/townhome units, this gap figure is $1.314 million, and for apartments, the aggregate gap figure is $828,000. The final step is to divide the total gap figure by the number of units in each prototype. The maximum rounded fee ranges from $34,000 per unit for single family low density development, $22,000 per unit for single family small lot/townhome, and $21,000 for each apartment unit. Fees can also be presented on a square foot basis. The maximum (rounded) square foot fee ranges from $13/SF per unit for single family low density, $13/SF per unit for single family small lot/townhome, and $20/SF for each apartment unit. The Appendices at the end of this report present the Nexus Study s methodology and findings in more detail. 4 There are no very low-income worker-households projected, and so the affordability gaps for low- and moderateincome households are used in these calculations. Housing Impact Fee Nexus Study City of Salinas 12

18 Table 7: Nexus Calculations for Three Housing Prototypes in Salinas ANALYTICAL STEPS INFORMATION/FINDINGS (1) Define residential prototypes. (2) Estimate household income distribution of new owner and renter households in Salinas. (3) Compute total consumer expenditures of the 100 buyer and 40 renter households for the entire County. (4) Estimate the number of new employees required to accommodate an increase in spending on services and retail goods. (5) Estimate the number of new households associated with employment growth. Three prototypes are defined for the City of Salinas two ownership models consisting of low density single family homes (40 units) and single family small lot/townhomes (60 units) and one apartment prototype (40 units). Unit sizes and rents are based on recent construction projects, in Salinas, Marina, and Unincorporated Monterey County. The average minimum incomes required to purchase low-density, single family houses ranges between $99,000 and $124,500 and for single family small lot/townhomes, income rages from $61,000 to $74,200. For new apartment units, incomes range from $52,000 to $76,000. These incomes are based on actual rents and sales prices of new developments included in the study (Monte Bella Tesori (Salinas), the Dunes - Seahouses and Surf House (Marina), and Creekbridge Apartments (Salinas). These incomes assume that 30% of gross income is paid for housing costs. This estimate comes from the IMPLAN3 model, which uses the Bureau of Labor Statistics' Consumer Expenditure Survey to distribute household income based on the spending patterns for nine different income groups. Before expenditures are calculated, adjustments are made to household incomes to account for payments to income taxes and savings. Using the IMPLAN3 model for Monterey County and the increase in expenditures defined in Step 3, growth in the number of workers (direct and induced) is estimated to be 30 for low-density single family, 31 for single family small lot/townhomes, and 19 for apartments. The number of new employees is divided by the average number of workers per household with workers in City of Salinas (1.72 workers per household according to the U.S. Census Bureau, , 3-Year American Community Survey.) The total number of new households is approximately 18 for low-density single family, 18 for single family small lot/townhomes, and 11 for apartments. (6) Estimate the incomes of new households. Multiply the average wage-earner s salary for each income category by 1.72 (average number of wage-earners in households with workers). Housing Impact Fee Nexus Study City of Salinas 13

19 ANALYTICAL STEPS INFORMATION/FINDINGS (7) Subtract those employees earning over $78,325 (the moderate-income cut-off for a 3.5-person household from the total number of new employees. 5 (8) Estimate the total housing affordability gap of new households requiring subsidies. (9) Calculate maximum potential housing fee. The total number of new employee-households is reduced to 13 for lowdensity single family, 13 for small lot/townhomes, and 8 for apartments. This number ($1,345,154 for low density, $1,313,913 for single family small lot/townhomes, and $827,673 for apartments) is based on multiplying the number of new households requiring affordable housing (in each income group) by the affordability gap presented in Appendix B (for each income group). The total gap for each housing prototype is divided by the number of units in each hypothetical development The results for low density are $33,629, rounded to $34,000 per unit; for single family small lot/townhomes, the result is $21,899, rounded to $22,000 per unit and for apartments, the amount is $20,692, rounded to $21,000 per unit. A square foot equivalent can be computed for each housing type based on dividing the unit gap by the average size of each prototype. These fees are $13/SF, for low density; $13/SF for single family small lot/townhomes, and $20/SF for an apartment unit. 5 The income cut-off used to define moderate-income is $78,325 since the average household size in Salinas is approximately 3.5 persons, according to the 2010 US Census. Housing Impact Fee Nexus Study City of Salinas 14

20 POLICY CONSIDERATIONS This study provides the economic analyses required to adopt housing impact fees on residential developments and answers the question of What are the maximum fees that the City can adopt on new housing developments? However, the economic analysis does not answer the question of What residential housing impact fees should the City adopt? The conclusion of this report provides a policy context to help guide City officials in determining the actual fees. When cities and counties consider whether to offset the full affordable housing impacts of new development or a portion of those impacts, a number of factors may be considered. For residential development housing impact fees, policymakers may wish to consider the following: What are possible fee options to consider? How do housing impact fees impact financial feasibility of the three residential prototypes? What are the housing impact fees in neighboring jurisdictions? How much will residential development fees increase? What is the relationship between revenues to be collected from the housing impact fee and the City s overall affordable housing strategy? Fee Options The City of Salinas has the option to charge the entire amount justified through a housing impact fee nexus study or a lesser amount. Table 8 presents three reduced fee options or scenarios assuming the same fee per square foot is charged for all housing prototypes. The three reduced fees, $10, $5, and $2 are meant to provide a range of options to consider. They were chosen after reviewing the fees of jurisdictions in similar housing markets. Because $13 is the maximum for the ownership units, the fees studied are lower than this level. Housing Impact Fee Nexus Study City of Salinas 15

21 Table 8: Housing Impact Fee Options Low Density Single Family Homes Small Lot Single Family/Townhomes Apartments Maximum Fee $34,000 $22,000 $21,000 Maximum Fee per Square Foot $13 $13 $20 Fee Scenarios Scenario #1: Fee/Unit $26, 000 $17,500 $10,600 Scenario #1: Fee per SF $10 $10 $10 Scenario #2: Fee Per Unit $13,000 $8,750 $5,300 Scenario #2: Fee per SF $5 $5 $5 Scenario #3: Fee Per Unit $5,200 $3,500 $2,120 Scenario #3: Fee per SF $2 $2 $2 Source: Calculations based on results presented in Appendix A tables. Effect of Housing Impact Fees on Financial Feasibility It is useful to look at how new impact fees will affect the likelihood of new development to happen. The best way to view this is to consider how new fees influence financial feasibility. A financial feasibility study considers whether a project is viable after taking into consideration its total costs and likely revenues. In those situations in which revenues exceed development costs, the final assessment is whether the difference between revenues and costs is great enough to provide the level of return or profit that a developer expects, given current market conditions. Therefore, the financial feasibility of suggested fee levels is an important consideration. Given current costs and revenues, development of the prototypes is not currently feasible as the following section explains. Based on information provided by a local builder, development cost estimates were created for the three prototypes. The feasibility assessment first looked at the financial feasibility of these three prototypes, given these costs and revenues assumed for the IMPLAN3 analysis. Several assumptions are needed for this analysis. These include the following: Reductions to gross revenues due to cost of sales (for for-sale prototypes) and operating expenses/vacancy loss for the rental prototype. Expectation of return for the for-sale prototypes, defined as the net value divided by development costs. Based on current market expectations, this number is 7% for the low density single homes and 8% for the small lot single family homes. For rental housing, there are several return measures, including the net value divided by development costs (based on a capitalization rate of six percent) and supportable debt, based on cash flow. Housing Impact Fee Nexus Study City of Salinas 16

22 Table 9 presents a summary of the feasibility testing results for for-sale housing and Table 10 presents results for rental housing. The calculations for Tables 9 and 10 are presented in Appendix C, as well as all assumptions and sources used. Table 9: Feasibility Testing of Three Fee Options for For-Sale Housing For Sale-Low Density (Average Size 2,600 SF) For-Sale High Density (1,750 SF) Unit Development Costs (Without Fee) $454,454 $319,883 Average Sales Prices Per Unit $467,500 $282,500 Net Sales Revenues $451,138 $272,613 Expected Return 7% 8% Return at Studied Rents/Prices -1% -15% Sales Prices Needed to Achieve Expected Returns $505,000 $357,500 Without Housing Fee Sales Prices Needed for Feasible Development Scenario #1 $10/SF $535,000 $377,500 Scenario #2 $5/SF $520,000 $367,500 Scenario #3 $2/SF $510,000 $362,000 Sources: Tables 3 and 8, Cost Data Provided by a Local Builder, and industry standards for additional calculations. See Appendix C for more details on sources. Note: It is not possible to know the sales prices of development in the Future Growth Areas. The prices used in the model are for reference only. What do we learn from these tables? First, based on the assumption that developers of low density and higher density single family homes wish to achieve a return on costs of between 7% and 8%, the studied sales prices are too low. However, if the average price per unit were to increase from $467,500 to $505,000 per low density single family unit and from $282,500 to $357,500 per high density single family/townhome unit, residential development would be feasible. Secondly, slightly higher sales prices would be needed, if housing impact fees are adopted. Table 9 provides the sales prices required under the three fee scenarios. For example, a sales price for the low density single family of $535,000 would be required under Fee Scenario #1, ($10/SF). This price is about $30,000 higher than the financially feasible price today of $505,000. Table 10 provides information about the rental housing prototype. Rental housing feasibility is somewhat more complex, since rental housing feasibility is based on a longer holding period, unlike for-sale housing which is assumed to be built and then sold. Thus, this analysis uses two measures of feasibility net value divided as a percentage of total development costs and the Housing Impact Fee Nexus Study City of Salinas 17

23 amount of debt the resulting cash flow can support. Although the estimated net value divided by development costs is positive at 3%, this is below the expected return level of approximately 14%. Increasing the return requires an increase in average rent per unit of approximately $155/month to high of $1,775/month. If housing impact fees are adopted, the rent required (assuming the Scenario #1 fee of $10/SF) would need to increase by $100 per month above the financially feasible rent level of $1,775. Table 10: Feasibility Testing of Three Fee Options for Rental Housing Development Costs Per Unit Assumes $208,619 Average Unit Size of 1,060 SF) Scenario #1: $10 $219,219 Scenario #2: $5 $213,919 Scenario #3: $2 $210,739 Studied Rent $1,620 Current Return (Net Value Divided by Dev. 3% Costs) Expected Return 14% Rent Needed for Expected Return without $1,775 Housing Fee Rents Needed for Expected Return Under Three Fee Scenarios Scenario #1: $10 $1,875 Scenario #2: $5 $1,835 Scenario #3: $2 $1,800 Debt Supported by Cash Flow Assuming Studied Rent $185,022 Assuming Higher Rent of $1,775 Required $202,726 for Financial Feasibility Assuming Higher Rents Required for Financial Feasibility Under Three Fee Scenarios Scenario #1: $10 $214,146 Scenario #2: $5 $209,567 Scenario #3: $2 $205,574 Sources: Tables 3 and 8, Cost Data Provided by a Local Builder, and industry standards for additional calculations such as Cushman and Wakefield s Class B Cap Rates estimate of between 5.75% and 6.5%. (Six percent was used in the modeling). See Appendix C for more details on sources and standards used in the feasibility testing. Note: It is not possible to know the sales prices of development in the Future Growth Areas. The prices used in the model are for reference only. Another measure of rental development feasibility is the debt per unit that the net revenues can support. According to the analysis undertaken, under the base case, the supportable debt is less than half the development costs. However, all scenarios that are based on higher rents demonstrate that the majority of development costs could be financed given the calculated cash flow under each fee scenario. Housing Impact Fee Nexus Study City of Salinas 18

24 One drawback to the feasibility modeling included in this study is that it assumes that rents and sales prices increase, while development costs remain constant, with the exception of the increased costs associated with housing impact fees. In reality, if developers in Salinas need to wait until rents and sales prices are high enough to make new development feasible, it is also likely that development costs will increase as well. Generally, cities have a fair amount of freedom to take the feasibility study into consideration or not as they set their fees, so long as they do not deprive landowners of all economic value of their land. Comparison with Fees Imposed by Neighboring Jurisdictions 6 Another important consideration is whether housing impact fees are charged in neighboring jurisdictions, and if so, what are their levels. Generally, cities encourage development and want to ensure a level playing field when it comes to housing impact fees. In other words, a city will consider whether the level of fee that is adopted could lead to less favorable development conditions and consequently a potential shift of development away from the city and to other cities or unincorporated areas. In Fall 2015, housing impact fees charged in similar market areas indicate that a fee of $2/SF is below fee levels currently charged at other cities, with the exception of rental housing in Santa Cruz County which also has a fee of $2/SF. (See Table 11.) Table 11: Square Foot Housing Impact Fees of Selected Jurisdictions Jurisdiction Single Family Multifamily/Rental Sacramento NA $2.58/SF Santa Cruz County Up to 2,000 SF, $2/SF Fee. Over 4,000 SF, $15/SF. Fee is gradually increased between $2 and $15, based on unit size. $2/SF Santa Rosa 2.5% of sales price (in-lieu fee) Between $1 and $6.55/SF, depending on size. Maximum is $12,712 per unit. Watsonville $12,107 per unit $6,054 per unit Source: Survey of Neighboring Jurisdictions conducted by Baird + Driskell Community Planning in November At this time, neither San Benito or Monterey County nor their incorporated cities have housing impact fees. City of Salinas Residential Impact and Planning Fees for Each Residential Prototype 6 This conclusion is based on a review of local ordinances, other internet research, telephone, and communications conducted by Baird + Driskell Community Planning. Housing Impact Fee Nexus Study City of Salinas 19

25 Another source of information that cities consider when adopting new fees is how these new fees will impact the overall fees that are charged on new residential developments. Cities that adopt new impact fees do not want the fee levels to be so high that they discourage new development from occurring within their boundaries. The City of Salinas currently charges the following impact fees: Sanitary Sewer Fee, Storm Drain Fee, Park Fee, and a Traffic Impact Fee. In addition, new developments pay the TAMC Regional Development Impact Fee (charged by Monterey County). The City s fees vary by location - fees in infill areas and elsewhere in the city are lower than fees for future growth areas (FGA). Since the majority of new housing development will occur in the FGA, fees presented in Table 12 provide information on FGA fees. The City of Salinas Department of Planning and Building provided existing fee information based on the prototypes used in this study, including assumptions regarding lot size and parking. This background information included the following assumptions: Average square foot fee per unit (2,600 SF for large lot single family homes, 1,750 SF for small lot/townhomes, and 1,060 SF for apartments) Total site area for the prototype project - assuming subdivision or apartment building development (105,000 SF for large lot single family, 105,000 SF for small lot/townhomes, and 42,490 SF for the apartment prototype). Parking assumptions SF garages for the large lot homes, 400 SF for the small lot/townhomes, and two spaces (one covered and one open) for the apartment prototype. Table 12 presents information on current FGA impact fees that are applicable to each of the three residential prototypes included in this study. On a square foot basis, the highest fees in the future growth area are associated with the apartment prototype ($9.23/SF) and the lowest fees in the future growth area are associated with the low density single family prototype ($5.33/SF citywide). If the City were to adopt a housing impact fee of $10/SF, total fees for the prototypes would almost double. Substantial increases in impact fees are not uncommon in cities that adopt new impact fees. However, fees adopted at a uniform $2/SF would result in overall fees increasing by less than 50%. Housing Impact Fee Nexus Study City of Salinas 20

26 Table 12: Increase in Total Citywide Impact Fees - Three Housing Impact Fee Scenarios Single Family Homes- Low Density Residential Prototypes Small Lot (1) Apartments Single Family Townhome Current FGA Fees $5.33 $7.92 $6.29 $9.23 Scenario #1: Fee per Square Foot $10 $10 $10 $10 Potential Total Fees $15.33 $17.92 $16.29 $19.23 Percentage Increase 188% 126% 159% 108% Scenario #2: Fee per Square Foot $5 $5 $5 $5 Potential Total Fees $10.33 $12.92 $11.29 $14.23 Percentage Increase 94% 63% 79% 54% Scenario #3: Fee per Square Foot $2 $2 $2 $2 Potential Total Fees $7.33 $9.92 $8.29 $11.23 Percentage Increase 38% 25% 32% 22% (1) City impact fees are slightly lower for townhomes than small lot, single family units, so two fee categories are presented in this table. Sources: Table 8 and the City of Salinas Department of Building and Planning, based on housing development descriptions of three housing prototypes. How Does a Housing Impact Fee Fit into Salinas Overall Housing Strategy The City has operated an Inclusionary Housing Program for many years and continues to operate this program. Although the City had relied on redevelopment funding to subsidize affordable housing until 2012, this is no longer available due to changes in state law.. Additionally, the City is a HUD entitlement city and receives approximately $500,000 annually in HOME funding that is allocated to affordable housing projects. In addition to these local funds, the non-profit developers in the City build affordable housing through the use of numerous state and federal sources. A description of these multiple funding sources can be found in the Salinas Consolidated Annual Plan Evaluation Report, which is updated every year. Housing impact fees would be deposited into a Housing Trust Fund. The purpose of the City s Housing Trust Fund is to provide local matching funds for new (and existing) affordable housing developers that will be seeking additional sources of financing for new development, or for refinancing and rehabilitation of existing projects. This Trust Fund is one of several sources of housing subsidy funds available for affordable developments built in the City. In order to cover the complete housing affordability gap that exists for very low-, low- and moderate-income households without assessing a housing impact fee at the maximum legally-justifiable rate, the City and its nonprofits can use funds available from this Housing Trust Fund, as well apply for loans and grants available from state and federal funding sources. Housing Impact Fee Nexus Study City of Salinas 21

27 ANNUAL ADJUSTMENT MECHANISM Similar to any impact fee, the residential impact fee should be adjusted annually for inflation and increases in construction costs. Adjustments are also needed due to possible changes in the housing affordability gap. However, the connection between new residential development and growth in employment derived from the IMPLAN3 Model is unlikely to change in the short run. It is advisable that the City adjusts its residential impact fee annually by using an annual adjustment mechanism. An adjustment mechanism updates the fees to compensate for inflation in development costs. To simplify annual adjustments, it is recommended that the City select a cost index that is routinely published. While there is no index that tracks changes in the City of Salinas development costs, including land, there are a few other options to consider. The first option is the Consumer Price Index (Shelter Only). The shelter component of the index covers costs for rent of primary residence, lodging away from home, owner s equivalent rent of primary residence, and household insurance. Of the total shelter index, costs associated with the owner s equivalent rent of primary residence constitute 70 percent of total costs entered into the index. A second option to adjust the fee for annual inflation is the construction cost index published in the Engineering News Record (ENR). This index is routinely used to update other types of impact fees. Cost index information for the San Francisco area, the closest geographical area to the City of Salinas, is available on an annual basis. While this index measures inflation in construction costs, it does not incorporate changes in land costs and public fees charged on new development. While both indices measure changes in housing costs, both understate the magnitude of inflation for the reasons presented above. However, since these indices are readily available and relatively simple to use, it is recommended that the City use these indices for annual adjustments. It is further recommended that the City base its annual adjustment mechanism on the higher of the two indices (CPI or ENR), using a five-year moving average as the inflation factor. 7 7 For an impact fee, a five-year moving average is calculated as follows: First, one averages the values of the index under study (shelter or construction costs) over the last five years. Then, a year later, one calculates a new average one that drops the first year and adds the current year. Consequently, the first year and the second year averages are not too far apart in terms of values, because they share four out of the five years included in the calculation. In this way, larger percentage changes are smoothed out over time. Housing Impact Fee Nexus Study City of Salinas 22

28 In addition to revising the fee annually for inflation, the City is encouraged to update the housing impact fee study every five years, or at the very least, update the housing affordability gap used in the basic model. The purpose of these updates is to insure that the fee is still based on a cost/revenue structure that remains applicable in the Salinas housing market. In this way, the fee will more accurately reflect any structural changes between affordable prices/rents and market rate sales prices/development costs. POLICY CHOICES There are a number of important policy choices that the city will have to make including: Whether to implement a fee What level that fee should be at and what types of development will have to pay the fee Whether to phase in the fee or apply the entire fee level when the policy is adopted. How the fee interacts with the inclusionary ordinance These considerations and others will be discussed in a separate document. Housing Impact Fee Nexus Study City of Salinas 23

29 APPENDIX A: IMPLAN METHODOLOGY AND CALCULATED NEXUS RESULTS Multiplier Impact Analysis Methodology Overview The economic multiplier analysis was conducted by Applied Development Economics (ADE), a Bay Area Economics Consulting firm, through the use of the IMPLAN Model. The IMPLAN model is an economic data set that has been used for over 35 years to measure the economic impacts of new investments and spending using the industrial relationships defined through an Input-Output Model. The IMPLAN model can estimate economic impacts resulting from changes in industry output, employment, income, and other measures. The latest version of this model is referred to as IMPLAN3. The IMPLAN3 model s calculations are based on changes in household income, which adjusts the gross income to account for the payment of income taxes and savings. ADE conducted two separate analyses. The first analysis estimated the household demand for retail goods and personal services. It is assumed that buyers of new housing units and renters of new apartment units in the City of Salinas increase demand for goods and services within the County. This demand is based on the projected incomes of these new buyers and renters. The second analysis estimated the multiplier effects that this new household demand would create in terms of employment and labor income. For this analysis, the input-output model used data specific to Monterey County in order to estimate the multiplier effects resulting from the households that could potentially rent or buy new housing units in Salinas. In this case, all of the multiplier effects derive from new demand for goods and local services (including government) that new households would generate within Monterey County. It does not account for economic impacts generated during the construction period, or any economic impacts that would occur outside of the county. The economic impacts estimated by the model generally fall into one of three categories - direct, indirect, or induced. For this analysis, the direct impacts represent the household income brought into the community by new residents. Indirect impacts would normally result from demand for commodities and services provided by suppliers for business operations. (Because the direct impacts come only from household spending, and not from business activity, the indirect effects were not calculated.) Induced impacts represent the potential effects resulting from household spending at local establishments by the new workers hired as a result of increased household expenditures. These impacts affect all sectors of the economy, but primarily affect retail businesses, health services, personal services providers, and government services. The employment estimates provided by the IMPLAN3 model cover all types of jobs, including full and part time jobs. Housing Impact Fee Nexus Study City of Salinas A-1